This is a known limitation of most (if not all) L2TP implementations. You can typically only have 1 connection from a single public IP address (I've seen times where 2 have connected but actually connecting to internal applications had big issues). As @PhilipDAth mentioned, you would need to use a different VPN technology. Cisco Anyconnect doesn't have this issue. Similarly, SSL VPN's or IKEv2 VPN's also don't have the issue. Re: How many concurrent client VPN connections from 1 public ip? - The Meraki Community
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